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BANCROFT 
LIBRARY 

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THE  LIBRARY 

OF 

THE  UNIVERSITY 
OF  CALIFORNIA 


_ 


Recreation  Uses  on  the 
National  Forests 


By 
FRANK  A.WAUGH 

Collaborator 


1918 


U.  S.  Department  of  Agriculture 
Forest  Service 


WASHINGTON  :  GOVERNMENT  PRINTING  OFFICE  :  19:8 


On  the  Tonto  Trail  in  the  Grand  Canyon 


Recreation  Uses  on  the  National  Forests 


EMG  before  the  National  Forests  were  established  men  went 
hunting  in  the  woods  and  fishing  in  the  streams.  Camping 
and  picnicking  in  the  wilds  had  an  ancient  priority  over  the  admin- 
istration of  those  same  areas  by  the  Federal  Government  for  the 
production  of  timber  and  the  conservation  of  water.  These 
conditions  were  not  changed  by  the  assignment  of  the  lands  to  the 
care  of  the  National  Forest  Service,  except  that  such  recreation 
uses  were  multiplied  and  intensified. 

It  is  of  course  inevitable  that  the  Forests  should  be  so  used. 
Outdoor  recreation  is  a  necessity  of  civilized  life,  and  as  civilization 
becomes  more  intensive  the  demand  grows  keener.  The  vast 
extent  of  our  present  National  Forests,  their  enticing  wildness,  and 
the  notable  beauty  of  the  native  landscape  lure  men  and  women 
thither  by  hundreds  of  thousands.  The  really  enormous  extent 
and  value  of  this  kind  of  forest  product  has  been  generally  over- 
looked in  America. 


Recreation  Uses  on 


This  oversight,  however,  is  only  local  and  temporary.  In  older 
countries,  where  public  forests  have  existed  for  centuries,  the 
recreation  use  of  such  areas  has  always  been  recognized.  It  would 
be  perfectly  easy  to  show  that  recreation  was,  in  fact,  the  original 
and  primary  purpose  in  the  creation  of  public  forests.  The 
ancient  law  of  England  is  most  significant  on  this  point.  From 
before  Norman  days  until  the  reign  of  Charles  II  the  legal  defini- 
tion of  a  forest  stood  as  follows: 

A  certain  territorie  of  wooddy  grounds  and  fruitfull  pasture,  priviledged  for  wild 
beastes  and  foules  of  Forest  Chase  and  Warren  to  rest  and  abide  in,  in  the  safe  protec- 
tion of  the  King,  for  his  princely  delight  and  pleasure,  which  territorie  of  ground, 
so  priviledged,  is  meered  and  bounded  with  irremoueable  markes,  meres,  and  bounda- 
ries, wether  knowen  by  matter  of  record  or  else  by  prescription.1 

Passing  from  ancient  law  in  England  to  present  conditions  in  the 
United  States  of  America,  we  find  that  recreation  uses  on  the 
National  Forests  are  rapidly  increasing,  and  that  they  have  reached 
a  stage  where  more  definite  and  systematic  provision  must  be 
made  for  them  in  the  plan  of  administration.  In  view  of  this  situa- 
tion, the  Forester,  early  in  1917,  commissioned  the  writer  to  make 
an  extended  examination  in  the  field  and  to  report  to  him  as  to 
existing  conditions  of  recreation,  with  recommendations  of  methods 
and  general  policies. 

The  present  report  is  based  on  a  five  months'  field  study  of 
existing  conditions.  Visits  were  made  to  all  the  Forest  districts, 
and  to  a  considerable  number  of  individual  Forests.  Special 
attention  was  naturally  given  to  those  regions  where  recreational 
developments  appear  to  be  most  pressing.  In  this  way  it  was 
possible  to  hold  extended  consultations  with  Forest  officers  having 
supervision  of  the  lands  thus  used,  and  also  with  those  private 
citizens  who  are  using  them. 

It  should  be  said  that  the  point  of  view  of  the  writer  is  that  of 
the  professional  landscape  engineer.  From  this  standpoint  the 

1Townley,  "  English  Woodlands,"  p.  i.    London,  1910.' 


the  National  Forests 


landscape  of  the  wide  Forest  areas  has  very  great  esthetic  and 
human  value.  The  mountains,  glaciers,  lakes,  streams,  woods, 
and  natural  parks  contribute  largely  and  effectively  to  human 
health  and  enjoyment.  This  contribution  has  a  demonstrable 
value.  The  fundamental  problem  of  the  landscape  engineer 
would  then  be  to  release  these  values,  to  make  the  human 
resources  of  the  Forests  accessible  to  visitors,  and  not  merely 
accessible  but  intelligible  and  effective. 

The  moment  that  recreation  (using  this  word  in  a  very  liberal 
meaning)  is  recognized  as  a  legitimate  Forest  utility  the  way  is 
opened  for  a  more  intelligent  administration  of  the  National 
Forests.  Recreation  then  takes  its  proper  place  along  with  all 
other  utilities.  In  each  particular  case  these  utilities  are  weighed 
against  one  another  and  a  plan  of  administration  devised  to 
adjust  and  harmonize,  to  the  utmost  point  practicable,  the  various 
forms  of  use  so  that  the  largest  net  total  of  public  good  may  be 
secured.  Where  one  must  be  subordinated  to  another,  prefer- 
ence is  given  to  that  of  highest  value  to  the  public. 

With  these  general  considerations  in  mind  we  may  take  a  look 
at  the  National  Forests,  observing  the  extent  and  nature  of  cur- 
rent recreation  activities. 

The  simplest  form  of  recreation  is  found  in  hiking,  packing, 
or  automobiling  through  the  Forests.  There  have  already  been 
provided  for  administrative  uses  (fire  protection,  etc.),  thousands 
of  miles  of  trails.  These  are  built  to  stand- 
Existing  Recre-  ardized  specifications,  the  most  popular  type 
ation  Uses  (" Class  A  trails")  providing  for  a  safe,  clean 
footway,  4  feet  wide,  laid  at  a  maximum 
gradient  of  6  per  cent.  Admirable  examples  of  this  kind  of  trail 
were  examined  in  the  Natural  Bridge  Area  of  the  Appalachian 
Forest  in  Virginia.  Here,  in  a  mountain  country  readily  acces- 
sible to  the  large  eastern  centers  of  population,  these  trails  lead 
through  splendid  forests  with  inspiring  landscape  outlooks,  across 


Recreation  Uses  on 


A  camping  party  in.  the  Uncompahgre  National  Forest.    Forest  Service  fire  tool  box  under  tree  on  right 

delightful  streams  and  amidst  surroundings  well  adapted  to 
camping  and  all  the  more  rigorous  forms  of  outdoor  exploration. 

Yet  this  is  merely  a  sample.  Similar  trails  by  hundreds  of 
miles  are  found  in  the  Forests  of  Colorado,  California,  Oregon, 
Washington,  Montana,  and  indeed  wherever  the  Forest  Service 
has  established  its  administration. 

Besides  these  trails,  suitable  for  foot  passengers  and  pack 
animals,  there  are  within  the  Forests  other  hundreds  of  miles  of 
roadway  fit  for  wagon  traffic  and  for  automobiling.  Much  of 
this  mileage  has  been  built  by  the  Forest  Service,  usually  in 
cooperation  with  local  (county  or  State)  authorities.  But, 
however  financed,  the  finished  roads  lie  far  and  tempting  through 
the  Forests.  Thither  the  camper  in  his  wagon  and  the  tourist  in 
his  automobile  take  their  way,  and  here  they  linger  for  days  and 
weeks  at  a  time.  The  mountains,  streams,  and  woodlands  are 
laid  open  to  thousands  of  persons'in  this  way,  and  no  one  counting 


the  National  Forests 


their  crowding  procession  can  doubt  their  appreciation  of  the 
opportunity. 

A  typical  example  of  this  provision  for  public  service  is  found 
in  the  "  Park-to-Park  Highway"  running  between  the  Yellow- 
stone National  Park  and  Glacier  National  Park,  constructed  by 
Forest  engineers  and  passing  over  the  Great  Divide  and  through 
the  Beaverhead  and  the  Bitterroot  Forests.  The  most  famous 
example  is  certainly  the  Columbia  River  Highway  which,  though 
not  designed  or  built  by  the  Forest  Service,  passes  for  miles 
through  the  Oregon  National  Forest. 

Along  these  automobile  and  wagon  trails  camps  are  in  strong 

demand.     Many  trail  tourists  do  not  mind  pat- 

Automoblle        ronizing  the  hotels  a  part  of  the  time,  but  for 

Camps  the  rest  they  greatly  prefer  the  tent  and  the 

camp  fire.     To   meet  their    needs  the    Forest 

Service  has  laid  out  and  equipped  a  large  number  of  camps.    These 

are  always  located  where  good  water  is  available,  and  usually  a 


Mount  Hood  from  a  timbered  park  in  the  Oregon  National  Forest 


8 


Recreation  Uses  on 


^^MMiHHBHM^Mi^MHHMHHMHMMMMM 

National  Forest  visitor  registering  his  name,  address,  and  destination.    Wenatchee  National  Forest 

(Sunset  High-way). 

practicable  wood  supply  is  an  item  of  the  equipment.  Simple 
provisions  are  made  for  sanitation,  and  cement  fireplaces  are 
often  installed.  Sometimes  telephone  service  is  made  available. 
Such  camps  are  extensively  used  by  travelers,  especially  along  the 
more  popular  through  routes.  To  a  certain  degree  they  prove  a 
protection  for  the  Forests,  since  the  camp  fires  of  the  tourists, 
instead  of  being  set  in  out-of-the-way  and  dangerous  places,  are 
made  in  safe  areas.  It  is  found,  moreover,  that  the  the  campers, 
once  their  interest  and  cooperation  is  aroused,  become  a  volunteer 
fire  guard  of  no  mean  efficiency.  In  hundreds  of  instances  these 
tourists  report  incipient  fires  or  assist  in  putting  them  out. 

On  the  forest  areas  are  many  spots  which, 
Picnic  for  special    local    reasons,    have    come  to   be 

Grounds  popular    as    picnic    grounds.     The    Big    Hole 

battle  field,  near  Wisdom,  Mont.,  is  a  fair 
example.  Here  the  old  settlers  hold  an  annual  reunion,  and 
parties  congregate  at  other  times. 


the  National  Forests 


Probably  the  most  notable  example  of  this  form  of  recreation  is 
found  at  Eagle  Creek  on  the  Oregon  Forest,  on  the  Columbia 
River  Highway.  Here  the  mountains  open  to  the  picturesque 
Eagle  Creek  gorge,  through  which  a  beautiful  mountain  stream 
flows  down  from  the  snows  of  Mount  Hood.  At  the  mouth  of  the 
stream,  where  it  is  crossed  by  the  Columbia  River  Highway,  the 
canyon  widens  into  a  small  natural  park  surrounded  by  big  trees. 
This  spot  is  approximately  40  miles  east  of  Portland,  just  the  con- 
venient distance  to  make  an  acceptable  stopping  place  for  auto- 
mobiles running  out  from  the  city.  Here  the  Forest  Service  has 
installed  sanitary  conveniences,  a  good  water  supply,  a  number  of 
fireplaces,  and  picnic  tables,  with  certain  other  practical  accommo- 
dations for  campers. 

And  here  the  picnickers  come  literally  by  the  thousands.  On 
any  pleasant  Sunday  in  summer  every  table  and  camp  fire  is 
crowded  and  the  grounds  take  on  the  appearance  of  circus  day. 


75062°— 18 2 


A  n  automobile  camper  in  the  Pike  National  Forest 


10  Recreation  Uses  on 

Hunting   and   fishing   are   perhaps   the   sports  most   typically 

associated  with  the  Forests.     In  the  great  public  forests  of  the 

Old  World  the  rearing  of  game  for  food  is  often 

Game  practiced  on  a  large  scale.     The  propriety  of 

Preservation       using  our  National  Forests  to  multiply  game 

for  sport,  for  food,  or  for  its  own  sake  seems 

obvious.     To  these  problems  the  Forest  Service  has  already  given 

considerable  study.     Specialists  from  the  United  States  Biological 

Survey  have  also  assisted  materially  in  this  field. 

Several  large  areas  within  the  National  Forests  have  been  set 
aside  through  State  legislation  and  Federal  proclamation  as  game 
sanctuaries.  In  these  areas  various  species  of  wild  fowl,  deer, 
elk,  and  bison  are  protected  at  all  times.  Hundreds  of  square 
miles  adjoining  the  Yellowstone  National  Park  are  reserved  in 
this  way  for  the  pasturage  and  protection  of  the  elk.  In  the 
Wichita  Mountains  of  Oklahoma  is  a  very  successful  preserve 
devoted  especially  to  the  buffalo.  Here  there  is  a  considerable 
herd  of  these  animals,  and  they  are  thriving  and  multiplying  in 
a  very  satisfactory  manner. 

Forest  officers  everywhere  cooperate  with  other  Federal  officials 
and  with  State  and  local  authorities  in  stocking  streams  with 
trout  or  lakes  with  other  fish  and  in  their  protection  under 
State  game  laws.  Indeed  it  is  almost  the  rule  that  the  local 
forest  rangers  shall  be  also  State  game  wardens  and  shall  assist 
everywhere  in  the  enforcement  of  game  laws. 

Some  of  the  noblest  landscape  in  the  wide  world  is  to  be  found 
within  the  National  Forests.  No  argument  is 
Scenic  required  to  show  that  where  such  landscapes 

Reservations  can  ^e  preserved  for  human  use  without  sacri- 
fice of  other  interests  they  should  be  firmly 
protected.  And  if  in  special  areas  this  direct  human  value 
of  the  landscape  can  be  shown  to  outweigh  other  economic 


the  National  Forests  1 1 

values  it  obviously  becomes  good  public  policy  to  sacrifice  the 
lesser  interest  to  the  greater. 

Actually  this  is  the  situation  which  arises  in  many  restricted 
areas.  In  the  White  Mountains  of  New  Hampshire,  for  exam- 
ple, are  a  number  of  very  beautiful  neighborhoods  the  charm  of 
which  could  be  quickly  annihilated  by  heedless  stripping  of  the 
forests.  These  specific  localities  have  a  high  recreation  value 
enjoyed  by  thousands  of  persons  annually — a  value  immeas- 
urably greater  than  that  to  be  reaped  from  a  sale  of  the  lumber. 
The  preservation  of  such  tracts  for  their  purely  scenic  and 
recreational  values  seems  hardly  open  to  debate.  The  only 
questions  are  just  what  areas  must  be  preserved  for  their  land- 
scape beauty,  how  they  shall  be  defined,  and  how  they  shall  be 
managed  to  secure  their  largest  contribution  to  the  beauty  of 
the  landscape.  An  early  study  should  be  made  in  the  White 
Mountain  Forest  to  determine  these  very  matters. 

There    are   hundreds    of   areas   within    the    National    Forests 

where  similar  reservations  should  be  made  for  the  same  ends 

* 

and  on  the  basis  of  similar  investigations.  One  other  outstand- 
ing example  deserves  special  mention.  This  is  the  scenery  of 
Lake  Chelan  in  central  Washington.  Here  we  have  an  ancient 
glacial  gorge  now  dammed  by  the  moraine  at  its  mouth  and  filled 
with  the  deep  blue  waters  of  many  glaciers.  These  glaciers 
hanging  on  the  steep  alpine  heights  which  shut  in  the  lake 
are  reflected,  along  with  the  white  rolling  clouds  upon  the 
mountain  summits,  in  the  glassy  waters  below.  If  one  had  the 
wildest  fjord  of  Norway  brought  inland  and  filled  with  sweet 
and  quiet  waters,  or  if  one  had  Lake  Brienz  of  Switzerland 
extended  to  a  length  of  50  miles,  one  would  have  a  possible 
competitor  for  Lake  Chelan;  but  until  such  improvements  in 
terrestrial  topography  can  be  made  this  lake  is  unique.  It 
is  in  short,  and  without  exaggeration  or  qualification,  one  of 
the  best  landscapes  in  the  world. 


12 


Recreation  Uses  on 


the  National  Forests  1 3 

Fortunately  a  large  proportion  of  the  shores  and  of  the  adjoin- 
ing country  belongs  to  the  public  and  rests  under  the  administra- 
tion cf  the  Forest  Service.  Fortunately,  too,  these  immeasurable 
scenic  values  can  be  preserved  without  the  slightest  interference 
with  the  timber  values  or  with  the  greater  grazing  interests 
in  this  territory.  Here  everything  is  to  be  gained  and  nothing 
lost  by  a  frank  recognition  of  esthetic  values  and  an  administra- 
tion based  on  the  policy  of  making  all  utilities  (lumbering, 
grazing,  irrigation,  watershed  protection,  mining,  and  landscape 
beauty)  fully  available  to  the  citizens  of  the  entire  country. 

In  our  scheme  of  legislation  and  administration  the  National 
Monuments  are  frankly  a  makeshift.  The  man  in  the  road  finds 
the  idea  a  puzzle.  Let  it  be  explained  there- 
The  National  f°re  that  each  National  Monument  is  created 
Monuments  presumably  for  the  preservation  of  some  natural 
wonder  or  some  historic  or  prehistoric  relic. 
The  land  including  the  objects  to  be  preserved  is  withdrawn  from 
the  usual  status  of  public  lands.  It  can  not  be  taken  up  for 
private  use  either  as  farm  homesteads  or  for  mining  or  other 
similar  commercial  uses.  It  is  closed  to  commercial  exploitation. 
This  withdrawal  is  made  by  presidential  proclamation,  and 
herein  lies  an  important  difference  between  a  National  Monu- 
ment and  a  National  Park,  which  can  be  created  only  by  act  of 
Congress. 

Here  is  another  inconsistency  which  troubles  the  average 
man,  in  that  some  of  the  National  Monuments  are  administered 
by  the  Department  of  the  Interior  while  others  are  under  the 
management  of  the  Department  of  Agriculture,  and  two  are  under 
the  authority  of  the  War  Department.  The  practical  explanation 
of  this  discrepancy  is  to  be  found  in  the  fact  that  some  of  the 
Monuments  were  erected  out  of  lands  already  under  administration 
of  the  Department  of  Agriculture  as  National  Forests,  and  the 


14 


Recreation  Uses  on 


Devil's  Post  Pile  National  Monument 


the  National  Forests 


15 


16 


Recreation  Uses  on 


proclamations  which  altered  the  status  of  the  lands  did  not  dis- 
turb the  existing  administration  of  those  lands.  It  was  more 
simple  and  economical  to  leave  the  care  of  these  areas  in  the  hands 
of  the  men  already  in  charge,  with  an  organization  on  the  ground 
which  had  to  be  maintained  in  any  case. 

On  the  other  hand,  some  National  Monuments  were  established 
from  other  lands  in  the  hands  of  the  Department  of  the  Interior; 
and  in  these  cases  likewise  the  status  of  the  land  was  changed 
without  affecting  the  administrative  authority. 


Old  cliff  dwellings,  Bandelier  National  Monument,  Santa  Fe  National  Forest 


the  National  Forests  ]  7 

In  this  way  the  Forest  Service  finds  itself  charged  with  the 
administration  of  a  number  of  areas  from  which  the  usual  com- 
mercial utilities  have  been  excluded  by  law  and  which  have  been 
specifically  reserved  for  recreational  and  allied  purposes.1 

One  of  these  National  Monuments  stands  so  clearly  in  a  class 
by  itself  that  a  special  word  should  be  given  to  it  here.     This  is  the 
Grand  Canyon   of  the  Colorado  in  northern 
The  Grand         Arizona.     By  consent  of  the  civilized  world 
Canyon  this  stands  enrolled  as  one  of  the  foremost  won- 

ders of  creation.  It  exhibits  beyond  all  dis- 
pute those  qualities  which  have  thus -far  generally  controlled  in  the 
making  of  our  National  Parks.  The  propriety  of  including  the 
Grand  Canyon  in  our  National  Park  family  is  so  overwhelming 
that  no  objection  could  be  raised  against  it,  if  indeed  anybody 
were  disposed  to  raise  such  objection. 

Yet  in  the  natural  course  of  legislation  and  executive  procedure 
the  Grand  Canyon  has  become,  not  a  National  Park,  but  a  National 
Monument,  and  the  Forest  Service  has  been  charged  with  its 
protection  and  administration.  And  the  Forest  Service  must 
obviously  do  the  best  it  can,  not  to  make  a  Forest  of  the  Grand 
Canyon,  but  to  manage  it  as  a  National  Monument. 

At  Fresno,  Cal.,  is  located  a  State  normal  school.     This  school, 
desiring  to  maintain  a  summer  session,  but  finding  the  midsum- 
mer climate  at  Fresno  inconvenient,  has  ar- 
Cooperation  ^  *^       ^ 

•j.i    r     j.»j.          ranged  to  hold  such  summer  sessions  at  Lake 
With  Instltu- 
.  •  Huntington,  about  75  miles  back  in  the  moun- 

tians.  Here  in  a  glorious  black  forest,  beside 
a  cool  glacier-fed  lake  and  almost  within  reach  of  the  perennial 
snows,  the  normal  school  is  building  up  a  permanent  equipment 
of  dormitories,  classrooms,  and  laboratories.  This  development 

1  A  list  of  the  National  Monuments  now  under  the  administration  of  the  Forest  Service  is  given  in  an 
appendix. 

75062°— 18 3 


18 


Recreation  Uses  on 


the  National  Forests  1 9 


is  going  forward  on  land  leased  in  one  of  the  National  Forests. 
The  active  cooperation  of  the  Forest  Service  has  from  the  first 
been  an  essential  factor  in  this  undertaking. 

At  other  points  on  the  lands  of  the  National  Forests  other 
institutions  of  various  characters  have  developed,  the  ground  being 
held  under  liberal  leases.  In  this  list  should  be  included  schools, 
sanatoria,  fraternal  camps,  summer  resorts,  etc. 

Perhaps  the  most  interesting  of  all  recreational  developments 
on  the  National  Forests  is  to  be  seen  in  the  municipal  playgrounds. 
The  first  and  most  fully  developed  of  these  is 
Municipal  tne  one  established  by  the  city  of  Los  Angeles, 

Playgrounds  Cal.,  on  Seeley  Creek  Flats  in  the  Angeles  Na- 
tional Forest.  Here  the  city  leased  from  the 
Forest  Service  a  tract  of  23  acres  of  well- wooded  mountain  land 
beside  a  pleasant  stream  and  lying  at  an  elevation  of  3,500  feet. 
On  this  tract  they  have  erected  61  small  summer  bungalows,  each 
capable  of  accommodating  from  two  to  six  persons.  These 
are  furnished  with  cot  beds.  A  central  clubhouse  has  been 
built;  also  a  central  kitchen  with  a  pleasant  outdoor  dining 
room.  Water  supply,  sanitary  equipment,  cement  swimming 
pool,  tennis  courts,  and  other  simple  camp  facilities  have  been 
provided.  When  in  full  swing  the  camp  will  take  care  of  about 
300  persons. 

This  camp  is  under  the  management  of  the  Los  Angeles  Play- 
ground Commission,  and  is  run  as  a  part  of  the  city  playground 
system.  Citizens  of  Los  Angeles  who  wish  to  take  a  vacation  in 
the  mountain  forests  register  with  the  playground  commission 
and  are  sent  out  in  relays  for  terms  of  two  weeks.  Some  classifi- 
cation of  vacationists  is  made.  For  example,  the  first  two  weeks 
of  the  season  the  camp  will  be  open  to  families,  the  second  two 
weeks  to  boys'  clubs,  the  third  fortnight  to  women  and  girls' 
clubs,  etc.  Members  of  the  regular  trained  playground  staff  are 


Recreation  Uses  on 


Los  Angeles  Municipal  Camp,  Angeles  National  Forest 

on  hand  to  direct  the  work  of  the  camp. .  Each  camper  is  expected 
to  help  with  the  necessary  camp  work,  which  averages  something 
less  than  one  hour's  labor  a  day.  The  bungalows,  beds,  and  food 
are  supplied  by  the  city;  also  transportation  by  rail  and  automo- 
bile from  I/os  Angeles  to  the  camp  (about  85  miles)  and  return. 
This  entire  two  weeks'  vacation,  house,  food,  and  transportation, 
costs,  under  war  conditions  of  1917,  $8.50  per  person.  After  par- 
ticipating personally  in  the  camp  of  1917  I  can  testify  that  the 
accommodations  are  clean  and  comfortable,  the  food  wholesome 
and  abundant,  the  surroundings  delightful;  and  I  am  reliably 
informed  that  the  city  had  a  balance  of  profit  left  at  the  close  of 
the  year's  operations. 

Several  other  cities  have  taken  leases  on  other  Forest  tracts 
for  similar  use,  so  that  this  form  of  municipally  directed  recrea- 
tion bids  fair  to  reach  a  considerable  popularity. 


the  National  Forests 


21 


A  great  many  persons  prefer  to  do  their  summer  camping 
in  comfortable  cabins  of  their  own  building.  These  they  like 

to    own.     Under    special    legislation    designed 
Permanent        to  meet  this  need  the  Forest  Service  now 

^  leases  small  tracts  (one-fourth  acre  to  i  acre) 

to  such  persons  on  terms  which  make  it  feasible  for  them  to  build 
and  furnish  their  own  camp  houses.  Naturally*  these  camps 
are  gregarious,  both  because  most  campers  like  a  little  society, 
even  in  the  woods,  and  because  the  attractions  of  pleasant 
streams  or  lakes  appeal  to  many  persons  alike. 

The  obvious  tendency  therefore  is  to  develop  this  important 
type  of  forest  recreation  in  the  form  of  small  summer  colonies, 
usually  upon  streams  or  lakes.  Several  hundred  such  centers 
have  already  been  established.  These  are  pretty  well  dis- 
tributed over  the  entire  National  Forest  domain.  The  most 
intensively  developed  are  those  in  the  Angeles  Forest  north  of 


A  summer  camp  in  the  Shasta  National  Forest 


22  Recreation  Uses  on 


Angeles,  Cal.,  where  every  canyon  which  has  running  water 
is  crowded  full  of  camp  houses,  many  of  them  substantial  and 
well  furnished  and  occupied  for  several  months  of  the  year. 

Indeed  some  of  these  colonies  readily  pass  from  the  character 
of  summer  camps  to  the  condition  of  permanent  towns.  At 
Cascada,  Cal.,  where  there  is  now  a  railroad 
Permanent  terminus  serving  an  active  lumber  industry, 
Communities  a  large  and  permanent  hydroelectric  de- 
velopment, and  a  growing  vacation  clientele, 
the  town  shows  every  assurance  of  permanence.  Yet  it  is  all 
built  upon  the  land  of  the  Sierra  National  Forest,  not  a  foot 
of  which  can  be  patented.  Every  building,  every  street,  and 
every  public  utility  of  every  sort  exists  upon  a  revocable  permit 
granted  by  the  Forest  Service.  .  It  is  true  that,  at  some  future 
time  if  the  development  of  Cascada  continues,  the  territory  may 
be  eliminated  from  the  Forest  and  the  town  thrown  on  its  own 
resources,  the  land  may  be  deeded  to  individuals,  and  all  the 
usual  agencies  of  local  government  set  in  operation;  but  by 
that  time  the  physical  form  of  the  town  will  be  largely  fixed— 
for  better  or  for  worse. 

One  other  specific  example  out  of  many  deserves  separate 
mention.  In  the  Cleveland  Forest,  at  an  elevation  of  about 
i  mile,  is  a  tract  of  land  covering  several  thousand  acres  and 
possessing  a  somewhat  remarkable  landscape  beauty.  There 
is  a  good  forest  cover,  mostly  of  yellow  pine  and  black  oak; 
there  are  numberless  grassy  natural  parks;  there  are  many 
springs  of  sweet  water,  running  brooks,  and  two  attractive 
little  lakes. 

This  tract  lies  about  halfway  between  San  Diego  on  the  west 
and  the  Imperial  Valley  on  the  east,  and  is  accessible  by  auto- 
mobile over  a  good  road  recently  constructed  by  Forest  Service 
engineers.  This  road  connects  with  a  new  State  road  between 


the  National  Forests  23 

San  Diego  and  El  Centre.  Now  the  Imperial  Valley,  though 
highly  prosperous  agriculturally,  does  not  enjoy  a  salubrious 
summer  climate.  Rather  is  it  noteworthy  for  its  aridity  and 
its  consistent  warmth.  The  citizens  therefore,  living  below 
sea  level,  look  longingly  to  the  mile-high  mountains,  70  miles 
away  on  their  western  horizon,  where  great  trees  give  benevolent 
shade,  where  brooks  of  sweet  water  run  singing  over  the  stones, 
and  where  quiet  lakes  reflect  the  dark  shadows  of  the  pines. 
On  the  good  roads  now  provided,  these  delectable  heights  can 
be  reached  by  automobile  in  three  or  four  hours.  Is  it  any 
wonder  that  the  dwellers  in  the  hot  valley  should  covet  these 
well- watered  mountains  as  a  place  of  summer  residence?  Many 
of  the  people  of  San  Diego,  to  whom  the  tract  is  equally  acces- 
sible, would  likewise  be  well  served  by  summer  homes  on 
these  same  mountains. 

9 

Apparently  these  plain  needs  can  be  fully  met  in  the  Cleveland 
Forest  without  the  slightest  sacrifice  of  other  Forest  utilities. 
This  means,  however,  the  development  of  a  practically  permanent 
community  on  virgin  land.  Streets  must  be  laid  out,  lots  sur- 
veyed, water  supply  protected,  sanitary  precautions  insured,  and 
provision  made  for  public  buildings,  playgrounds,  and  all  equip- 
ment of  a  full-fledged  and  active  community.  In  short,  we  have 
here  presented  a  most  fascinating  problem  in  town  planning. 

Having  now  enumerated  the  principal  forms  which  recreation 

assumes  on  the  National  Forests,  and  having  in  view  the  question 

as  to  what  policies  should  prevail  in  the  admin- 

Valuation  of      istration  of  these  interests,  it  seems  desirable 

Recreation          to  form  the  clearest  possible  conception  of  the 

extent  and  value  of  this  recreation. 

In  the  summer  of  1916  forest  officers  in  the  field  were  directed 
to  report  upon  the  number  of  recreation  visitors  with  a  rough 
classification  of  their  activities — camping,  fishing,  hunting,  motor- 


24  Recreation  Uses  on 

ing,  hiking,  etc.  As  the  investigation  was  new,  the  specifications 
somewhat  vague,  and  the  census  officers  were  preoccupied  with 
other  duties,  the  results  when  compiled  could  not  be  too  freely 
accepted  as  decisive.  Personal  examination  convinces  me  that 
the  numbers  reported  were  generally  too  low.  Nevertheless,  the 
summary  figures  indicated  that  approximately  two  and  a  half 
million  persons  during  the  summer  of  1916  entered  upon  the 
National  Forests  for  some  kind  of  recreation.1  During  the  summer 
of  1917  the  census,  which  it  had  been  planned  to  continue,  was 
seriously  impaired  through  the  depletion  of  the  Forest  staff  by 
enlistment  in  the  Army.  However,  a  certain  number  of  Forests 
were  able  to  report  the  count  of  recreation  visitors  for  the  year, 
and  these  reports  indicate  very  clearly  a  substantial  increase  over 
the  year  1916.  A  conservative  estimate  for  1917  would  place  the 
total  of  recreation  visitors  at  3,000,000. 

If  these  figures  seem  large  it  must  be  remembered  that  the 
National  Forests  are  large.  They  cover  three  and  one-half  times 
the  area  of  all  New  England.  There  are  151  different  Forests, 
with  an  area  of  about  156,000,000  acres,  occupying  territory  in  22 
different  States  and  Territories. 

A  further  estimate  made  by  the  forest  officers  on  the  ground 
indicates  that  the  average  stay  of  these  visitors  was  two  and  one- 
half  days.  This  gives  us  a  basis  for  a  more  accurate  measurement 
of  the  total  recreation  product,  since  students  of  this  subject 
generally  agree  that  the  hour  is  the  proper  unit  by  which  to  measure 
recreation.  If,  then,  the  average  visitor  spent  two  and  one-half 
days  on  the  Forests,  and  if  we  call  these  lo-hour  days,  thus  con- 
verting the  time  per  person  to  25  hours;  and  if  we  multiply  this 
factor  by  the  number  of  visitors  (3,000,000)  we  reach  the  con- 
siderable total  of  75,000,000  recreation  hours.  While  the  factors 

1  It  seems  probable  that  in  these  totals  a  good  many  individuals  were  counted  twice.  Thus  a  single 
person  might  pass  through  10  different  Forests  and  be  separately  counted  in  each  of  them.  This  fact,  how- 
ever, does  not  affect  our  computation. 


the  National  Forests  25 

here  used  are  all  estimates,  they  are  carefully  made  upon  actual 
counts,  and  the  final  product  is  not  far  from  the  truth. 

The  further  matter  as  to  the  market  value  of  this  body  of 
recreation  can  be  determined  within  reasonable  limits.  Mr.  G.  A. 
Parker,  superintendent  of  parks  in  Hartford,  Conn.,  the  recognized 
authority  on  such  matters,  computes  that  park  recreation  as 
managed  in  the  United  States  costs  on  the  average  2  cents  an 
hour.  This,  however,  is  cost,  not  value. 

The  human  value  of  an  hour  spent  in  skating  in  a  city  park  or 
fishing  in  a  National  Forest  would  be  hard  to  estimate;  but  ulti- 
mate human  values  are  seldom  estimated  in  dollars  and  cents. 
Our  usual  figures  indicate  merely  commercial  values,  i.  e.,  market 
prices.  Now  the  commercial  value  or  market  price  of  recreation 
is  determinable  quite  as  easily  and  exactly  as  the  price  of  beans 
or  books  or  tobacco.  Enormous  quantities  of  recreation  are  daily 
bought  and  sold  in  the  open  market,  and  the  prices  are  as  well 
recognized  as  for  any  commodity  of  commerce.  The  movies  cost 
10  cents  or  15  cents;  the  vaudeville  theaters  cost  25  cents  or  50 
cents;  the  "legitimate  drama"  costs  50  cents  to  $2  a  hearing; 
concerts  cost  from  25  cents  to  $2;  grand  opera,  $2  to  $5;  a  base- 
ball game  costs  50  cents;  the  circus  costs  50  cents  for  the  big  tent, 
10  cents  for  the  concert,  and  10  cents  for  the  side  show. 

A  moment's  thought  will  show  that  5  cents  an  hour  represents 
the  absolutely  minimum  cost  of  commercialized  recreation.  In 
some  towns  a  person  can  buy  the  mild  entertainment  of  an  hour's 
ride  on  the  street  cars  for  a  nickel.  There  still  are  streets  where 
the  movies  perform  indescribable  rubbish  for  5  cents. 

On  the  whole,  however,  it  is  perfectly  clear  that  very  few  and 
very  questionable  forms  of  recreation  are  offered  at  the  price  of 
5  cents  an  hour.  If  we  go  up  to  10  cents  an  hour  the  availabili- 
ties improve.  The  movies  are  better ;  we  can  occasionally  get  into 
a  skating  rink  for  a  dime;  we  can  buy  an  hour's  reading  in  a  cheap 


26  Recreation  Uses  on 

magazine;  we  can  ride  out  to  the  park  and  back;  or  we  can  get 
10  cents'  worth  of  fishhooks  and  go  fishing.  Our  choice  is  still 
much  restricted. 

If  we  seek  a  comparison  with  forms  of  recreation  more  nearly 
like  those  offered  by  the  Forests,  our  results  are  less  precise  but 
no  less  convincing.  A  few  men  are  able  to  maintain  private  hunt- 
ing and  fishing  clubs  in  the  Adirondacks,  in  Maine,  or  on  the 
Restigouche.  The  time  they  pass  at  these  resorts  costs  them 
anywhere  from  $i  to  $10  an  hour.  To  take  a  vacation  at  any 
public  seaside  or  mountain  resort  costs  from  $2  to  $10  a  day. 

These  figures,  though  somewhat  sketchy,  are  a  statement  of 
plain  facts.  In  view  of  them  the  following  generalizations  are 
self-evident : 

1.  The  minimum  market  cost  to  the  consumer  of  wholesome 
recreation  privately  provided  is  10  cents  an  hour. 

2.  The  average  cost  of  commercial  recreation  is  much  higher, 
probably  lying  somewhere  between  25  cents  and  $i  an  hour. 

It  ought  to  be  self-evident,  further,  that  the  great  bulk  of  such 
recreation  is  worth  all  it  costs.  If  it  isn't,  the  large  majority  of 
our  whole  population  are  being  daily  robbed  in  their  recreation 
bills.  One  more  premise  hardly  needs  an  argument,  viz,  that  the 
average  recreation  on  the  National  Forests  is  as  valuable  in  all 
human  ways  as  the  average  of  commercial  recreations. 

Now  if  we  take  even  the  minimum  of  these  estimates  and  apply 
the  figures  to  the  problem  in  hand  the  results  are  fairly  sober- 
ing. For  75,000,000  recreation  hours  annually  yielded  by  the 
National  Forests  (and  these  figures  will  be  quickly  and  widely  ex- 
ceeded in  years  to  come),  valued  at  the  minimum  of  10  cents  an 
hour,  amounts  to  $7,500,000 — a  pretty  penny. 

Stated  in  general  terms  it  appears  that  the  recreation  use  of  the 
National  Forests  has  a  very  substantial  commercial  value,  and  that 
recreation  stands  clearly  as  one  of  the  major  Forest  utilities. 


the  National  Forests  27 

We  have  seen  the  wide  extent  and  variety  of  recreation  uses  on 
the  National  Forests,  and  we  have  considered  briefly  the  commer- 
cial value  of  this  product.     We  are  now  in  a 

position  to  discuss  some  of  the  questions  of 
Policies  U1.       ,.          .     f.  j  . 

public  policy  as  implied  in  these  data.     Such 

questions  of  policy  must  inevitably  have  a  considerable  influence 
on  the  practical  administrative  operations  of  the  Forest  Service. 

It  would  seem  that  the  following  principles  may  be  safely 
adopted: 

1.  Recreation  upon  the  Forest  areas  is  a  social  utility  of  large 
dimensions  and  very  substantial  value. 

2.  Recreation  of  many  kinds,  all  legitimate,  develops  on  prac- 
tically all  areas  of  the  National  Forests.     It  is  inherent  in  the 
character  of  the  Forests  and  must  be  recognized  as  a  permanent 
and  universal  factor  in  Forest  administration.     Only  by  the  most 
drastic  and  extraordinary  administrative  measures  could  recrea- 
tion be  excluded  from  particular  Forest  areas. 

3.  Being  a  public  utility  of  great  value  and  being  inevitable 
to  the  Forest  administration,  recreation  should  be  developed  by 
the  Forest  Service  on  the  same  basis  as  any  other  Forest  utility. 

The  most  logical  statement  of  the  situation  is  made  by  saying 
that  recreation  .stands  on  a  par  with  other  major  uses  of  the 
Forest  areas,  and  is  to  be  managed  on  its  merits  precisely  like 
the  others.  These  major  uses  are — 

Timber  production 

Grazing. 

Watershed  protection. 

Recreation. 

And  from  the  figures  given  it  would  appear  that  recreation  is  by 
no  means  an  unworthy  member  of  this  group. 

Now  the  policy  with  respect  to  handling  these  several  utilities  on 
the  Forest  areas  has  never  been  obscure.  Where  two  or  more  of 


28  Recreation  Uses  on 

these  main  uses  can  be  served  at  the  same  time  on  the  same 
area  they  are  carried  forward  side  by  side,  sometimes  in  actual 
cooperation.  Whenever  two  of  these  uses  come  into  conflict, 
some  authority  determines  which  is  likely  to  render  the  greater 
public  service.  This  then  becomes  the  paramount  use  on  the 
area  in  question;  other  uses  are  secondary,  and,  if  they  interfere 
seriously  with  the  primary  use,  they  are  altogether  excluded  from 
the  area.  This  policy  is  so  obvious,  simple,  and  practical  that  it 
needs  no  defense. 

Moreover  this  policy  need  not  be  changed ,  in  the  slightest 
when  recreation  comes  to  be  recognized  in  the  list  of  major 
utilities.  It  is,  in  fact,  the  policy  already  and  inevitably  adopted. 
On  the  principal  areas  of  the  National  Forests  recreation  is  an 
incidental  use;  on  some  it  is  a  paramount  use;  on  a  few  it  becomes 
the  exclusive  use. 

With  respect  to  this  matter  as  it  affects  the  internal  workings  of 
the  Forest  Service  alone,  some  emphasis  should  be  placed  on 
the  fact,  frequently  not  recognized,  that  the  recreation  use  on 
Forest  lands  only  rarely  interferes  with  other  uses.  In  general 
the  natural  development  and  protection  of  the  Forests  operates 
directly  to  enhance  the  recreation  values.  On  the  other  hand 
recreation,  except  where  it  becomes  intensive  at  certain  points, 
seldom  infringes  upon  other  uses  of  the  Forest.  The  development 
of  this  fact  has  been,  in  some  cases,  rather  surprising.  For 
example,  it  has  been  found,  contrary  to  common  expectation, 
that  the  presence  of  campers  and  summer-home  permittees  in 
considerable  numbers,  instead  of  increasing  the  fire  risk  has  in 
some  cases  actually  assisted  in  fire  protection.  Any  general 
argument  therefore  which  alleges  a  conflict  between  the  recreation 
uses  and  other  Forest  utilities  starts  from  a  premise  which  is  not 
true. 


the  National  Forests  29 

In  any  study  of  public  recreation  on  the  National  Forests  cne 
can  not  go  very  far  without  facing  problems  which  lead  beyond 

the  confines  of  the  Forest  Service.     Especially 
Extra-depart-  .,     A.      ,  .,,    . 

must  consideration  be  given  to  possible  inter- 
mental  As- 

,  relations    with    the    National    Park    Service, 

pects 

a  separate  branch  of  the  Federal  organization 

designed  specifically  to  care  for  the  larger  enterprises  of  recrea- 
tion on  public  lands  dedicated  to  such  use.  It  has  been  sug- 
gested that  the  existence  of  a  National  Park  Service  made  it 
unnecessary  and  unwise  for  the  Forest  Service  to  concern  itself 
at  all  with  such  matters. 

As  soon  as  any  attempt  is  made  to  bring  such  theoretical  sug- 
gestions down  to  a  practical  working  basis  they  take  form  in  one 
or  the  other  of  the  following  schemes:  Either  to  turn  over  to  the 
Park  Service  all  recreational  activities  wherever  located,  or  to 
transfer  all  recreation  areas  bodily  from  the  National  Forests 
to  the  National  Parks.  These  two  schemes  are  equally  impossible, 
but  on  account  of  their  frequent  reappearance  their  unworkable- 
ness  should  be  briefly  exhibited. 

The  former  plan  would  require  the  Forest  Service  and  the  Park 
Service  to  operate  jointly  in  the  same  territory;  and  while  such 
cooperation  might  conceivably  be  established  in  a  few  carefully 
delimited  territories,  it  is  altogether  out  of  reason  to  expect  such 
a  dual  administration  to  succeed  over  the  enormous  and  far-flung 
areas  of  the  National  Forests  and  National  Parks.  The  sugges- 
tion indeed  proceeds  on  the  assumption  that  only  a  few  restricted 
portions  of  the  Forests  are  used  for  recreation.  This  assumption  is 
very  far  from  the  truth.  The  fact  is,  as  already  pointed  out,  that 
public  recreation  develops  upon  practically  every  square  mile  of 
the  Forest  domain.  Such  an  interpenetration  of  two  branches 
of  administration  (which  now  exist  in  two  separate  executive 
departments)  could  be  accomplished  only  by  the  practical  atnal- 


30  Recreation  Uses  on 

gamation  of  the  two  services.  It  would  be  practically  necessary 
to  consolidate  the  Forest  Service  and  the  Park  Service  into  one 
administration  under  a  single  head. 

The  other  alternative  of  transferring  all  recreation  areas  to 
the  National  Parks  would  simply  abolish  the  National  Forests. 
For  as  long  as  any  Forests  are  left  they  will  continue  to  be  used 
for  purposes  of  recreation;  and  these  uses  will  be  extensive  and 
valuable. 

While  both  these  ideas  are  manifestly  absurd  when  offered  for 
sweeping  adoption,  each  has  some  merit  when  applied  within 
important  limitations.  Some  degree  of  cooperation  has  naturally, 
almost  necessarily,  been  established  between  the  Forest  Service 
and  the  Park  Service,  for  example  in  the  fire  patrol  of  neighboring 
areas.  Arrangements  might  be  made,  and  obviously  should  be 
made,  for  connecting  Park  trails  with  Forest  trails  where  the  two 
services  administer  adjoining  lands.  Mention  has  already  been 
made  (p.  7)  of  the  " Park-to-Park  Highway"  built  through  the 
National  Forests  and  connecting  Yellowstone  and  Glacier  National 
Parks.  Rather  extensive  timber  cuttings  for  forest  improvement 
and  fire  protection  are  needed  at  the  present  moment  in  certain 
places  in  the  National  Parks,  and  such  operations  could  probably 
be  conducted  most  advantageously  by  experienced  men  from  the 
staff  of  the  Forest  Service.  Cooperation  in  these  and  similar 
ways  is  much  to  be  encouraged;  but  all  this  falls  far  short  of  the 
wholesale  exchange  of  services  imagined  by  those  who  would 
offer  this  as  a  complete  solution  of  all  administrative  problems. 

The  second  suggestion,  that  recreation  areas  be  taken  out  of 
the  National  Forests  and  added  to  the  National  Parks  is  also 
capable  of  limited  application.  It  has  in  fact  been  adopted  in 
the  case  of  Glacier  and  Rocky  Mountain  National  Parks;  and  the 
move  to  assign  the  Gtand  Canyon  to  the  family  of  the  National 
Parks  is  approved  by  all  informed  persons. 


the  National  Forests 


31 


32 


Recreation  Uses  on 


Santa  Fe  Lake,  Santa  Fe  National  Forest 


the  National  Forests  33 

But  any  general  movement  in  this  direction  faces  serious  perils. 
At  the  present  moment  there  are  being  pushed  a  dozen  or  more 
ill-considered  schemes  to  establish  "National  Parks,"  which 
parks  would  be  obviously  in  no  sense  national  except  that  Uncle 
Sam  might  foot  the  bills.  The  plain  intent  of  some  of  these 
proposals  is  to  appropriate  the  advertising  value  of  the  National 
Park  name  for  the  benefit  of  some  city  or  local  community. 
Against  all  such  schemes  it  is  necessary  in  the  public  interest  to 
make  the  strongest  stand.  Were  such  a  policy  to  be  followed  the 
result  would  be  a  serious  menace  both  to  the  National  Forests 
and  to  the  National  Parks.  The  Forests  would  suffer  through 
the  alienation  of  important  areas  and  the  disturbance  of  Forest 
administration.  The  Parks  would  suffer  through  the  degra- 
dation of  their  present  high  reputation. 

To  anyone  who  examines  the  facts  at  any  length  in  their  prac- 
tical bearings  it  soon  becomes  evident  that  special  areas  can  not 
be  arbitrarily  transferred  from  the  National  Forests  just  because 
they  happen  to  be  used  for  recreation.  Even  areas  on  which 
recreation  comes  to  be  the  exclusive  use  can  not  always,  or  even 
generally,  be  segregated  in  this  manner.  As  a  striking  example 
of  this  principle  the  White  Mountain  Forest  of  New  Hampshire 
may  be  cited.  The  White  Mountain  territory  is  peculiarly 
suited  to  recreation  of  many  kinds.  It  is  largely  and  intensively 
used  for  these  purposes.  It  would  be  very  easy  for  the  theorist 
to  say  that  this  section  is  worth  much  more  for  its  beauty  than  for 
its  timber  and  that  therefore  it  must  be  a  Park  instead  of  a  Forest; 
yet  the  history  of  the  region  and  of  the  legislation  establishing  the 
present  National  Forest  are  such  as  positively  to  require  the 
continuance  of  the  Forest  administration. 

Under  such  circumstances  it  is  idle  and  mischievous  to  talk 
about  the  suppression  of  recreation  activities  on  the  National 
Forests,  or  of  divesting  the  Forest  Service  of  the  administration 
of  recreation  uses,  or  of  any  other  policy  than  a  clear-cut,  straight- 


34  Recreation  Uses  on 

forward  development  of  recreation  utilities  on  their  merits  and 
by  the  best  known  means. 

The  inevitable  conclusion  from  these  considerations  is  that  the 
Park  Service  be  entrusted  with  the  care  of  large  and  important 
areas  where  the  preservation  of  unique  landscape  values  is  of 
paramount  importance  and  where  recreation  is  the  exclusive 
utility ;  but  that  areas  in  which  several  utilities,  including  recrea- 
tion, are  to  be  administered  should  properly  be  assigned  to  the 
charge  of  the  Forest  Service.  Such  a  policy  would  be  intelligible 
and  practical,  and  can  be  carried  out  by  the  organizations  now  in 
the  field. 

Within  the  Forest  Service  organization  another  serious  problem 
now  emerges.  As  soon  as  it  becomes  clear  that  recreation  is  an 
important  and  a  permanent  utility  upon  the 
A  Perennial  Forests  and  that  it  must  be  administered  on 
Problem  its  merits  in-  fair  comparison  with  timber  pro- 

duction, watershed  protection,  grazing  and 
other  utilities,  it  becomes  clearly  necessary  to  provide  the  methods 
whereby  the  varying  (and  sometimes  conflicting)  claims  of  these 
several  utilities  may  be  adjudicated.  The  Forest  Service  has 
already  developed  intensive  studies  in  land  classification  which 
lead  in  this  direction.  This  classification  of  lands  as  to  their 
uses  may  easily  be  carried  farther  and  may  be  made  to  include  a 
consideration  of  recreation  values. 

But  conditions  change  from  year  to  year.  An  adjustment 
which  is  fair  to  all  interests  now  may  not  be  wisest  under  the  new 
conditions  10  years  hence.  We  seek  a  moving  equilibrium.  In 
short,  the  Forest  Service  needs,  within  its  own  organization,  a 
committee  on  forest  utilities  which  shall  constantly  endeavor  to 
secure  the  fullest  development  of  all  the  resources  in  the  National 
Forests.  Before  this  committee  all  questions  of  recreation  uses, 
landscape  protection,  and  their  like  will  be  determined  in  fair 


the  National  Forests  35 


comparison  with  other  utilities.  Such  a  committee  would  be 
able  to  decide  with  respect  to  each  unit  of  the  Forest  areas  the 
extent  to  which  recreation  might  be  permitted  or  encouraged, 
whether  it  should  be  subordinate  or  paramount  to  grazing,  timber 
production,  or  watershed  protection,  and  what  assignment  of 
responsibility  within  the  Service  personnel  would  best  meet  the 
needs  of  the  area  as  weighed  by  the  committee. 

Plainly  such  a  committee  should  include  some  one  with  a  liberal 
and  sympathetic  knowledge  of  recreation  and  landscape  values, 
just  as  it  would  need  men  well  informed  as  to  timber  values  and 
grazing  values.  Some  such  competent  court  is  actually  necessary 
to  the  just  development  of  recreation  utilities  on  the  National 
Forests.  Steps  have  already  been  taken  to  extend  the  work  in 
land  classification  so  as  to  meet  these  requirements. 

It  has  always  been  the  policy  of  the  Forest  Service  to  employ 

men  of  special  technical  ability  on  the  numerous  problems  arising 

in    the    management    of   the    Forests.      Thus 

jP  .  ,  ,  _  men  trained  in  technical  forestry  are  placed  in 
Trained  Men 

»r      i    -j  charge  of  sylvicultural  operations,  men  expert 

in  the  cattle  industry  control  questions  of  graz- 
ing; while  mining  engineers,  land  surveyors,  lawyers,  entolmolo- 
gists,  and  statisticians  are  employed  for  those  investigations, 
operations,  and  lines  of  administration  in  which  they  are  severally 
experienced.  A  considerable  part  of  the  success  achieved  by  the 
Forest  Service  has  unquestionably  been  due  to  this  policy. 

When  we  come  now  to  recognize  recreation  as  an  essential  and 
inescapable  Forest  utility  we  can  not  be  blind  to  the  need  of  special- 
ized service  of  another  kind.  It  will  be  seen  that  the  undertakings 
actually  in  hand  as  enumerated  in  earlier  sections  of  this  pamph- 
let (viz,  trail  location,  planning  and  equipment  of  automobile 
camps,  picnic  grounds,  protection  and  development  of  scenic 
reservations,  game  preservation,  recreation  activities  in  National 


36  Recreation  Uses  on 

Monuments,  the  layout  of  permanent  camp  areas,  the  planning 
of  permanent  communities,  etc.)  fall  most  nearly  within  the  field 
of  the  landscape  engineer.  A  somewhat  specialized  kind  of  land- 
scape engineering  is  in  fact  needed  upon  these  Forest  problems,  but 
in  a  general  way  the  professional  training  actually  available  in 
landscape  engineering  best  meets  the  special  requirements  here 
developing. 

The  principal  conclusions  reached  in  the  foregoing  discussion 
may  be  briefly  summarized  as  follows: 

~  i.  The  National  Forests  cover  wide  areas  of 

General  ... 

o  land,  much  of  it  wild,  interesting,  and  beau- 

tiful in  a  surpassing  degree.  The  total  area 
is  approximately  156,000,000  acres,  equal  to  about  three  and 
one-half  times  the  whole  of  New  England,  or  to  the  combined 
States  of  Louisiana,  Alabama,  Florida,  Georgia,  and  Mississippi; 
or  to  the  great  block  of  Central  States,  Iowa,  Missouri,  Illinois, 
Indiana,  and  Ohio.  These  Forests  are  distributed  through  22 
States  and  Territories. 

2.  Historically   it    appears   that    National    Forests   were    first 
created  for  purposes  of  recreation,  and  that  this  use  is  traditionally 
universal. 

3.  Actually  it  appears  that  the  National  Forests  of  the  United 
States  have  always  been  extensively  used  for  recreation  and  that 
these  uses  are  rapidly  increasing. 

4.  The  principal  forms  of  recreation  now  in  vogue  are  hunting, 
fishing,  hiking,  packing,  camping,  automobiling,  and  picnicking. 

5.  The    construction    and    general    supervision    of   permanent 
camps,  picnic  grounds,  playgrounds,  and  town  sites  has  become 
clearly  necessary  in  the  public  interest. 

6.  Game  preservation  has  already  been  recognized  as  a  legiti- 
mate and  worth-while  feature  of  Forest  administration. 


the  National  Forests  37 

7.  The  protection  of  particularly  good  scenery  and  of  relics  of 
historic  or  archaeological  value  is  also  recognized  as  a  proper 
function  of  Forest  Service  administration. 

8.  Several  National  Monuments  assigned  to  the  care  of  the 
Forest  Service  are  maintained  mainly  for  recreational  purposes 
and  for  purposes  of  study. 

9.  The  extent  to  which  the  Forest  areas  are  already  being  used 
for  recreation  is  remarkable.     It  appears  that  about  3,000,000 
persons  annually  visit  the  Forests  for  recreation,  and  that  their 
number  is  rapidly  increasing.     It  is  estimated  that  the  average 
stay  of  these  visitors  is  two  and  one-half  days. 

10.  A  cash  valuation  may  be  reasonably  placed  on  this  body  of 
recreation.     According  to  the  lowest  possible  estimates  it  would 
have  a  commercial  value  of  $7,500,000  annually. 

11.  At  all  events  it  seems  obvious  that  recreation  must  be 
recognized  as  a  large  and  highly  valuable  utility  in  the  National 
Forests,  and  that  this  utility  must  be  fairly  conserved  and  devel- 
oped in  proportion  to  its  value  to  the  public. 

12.  To  this  end  the  Forest  Service  should  undertake  to  make  a 
study  of  general  recreation  policies  and  of  the  specific  require- 
ments of  specific  areas  within  the  National  Forests,  so  as  to  arrive 
at  a  correct  estimate  of  recreation  values  and  to  provide  the 
best  means  of  developing  and  administering  these  utilities. 

13.  In  this  work  the  Forest  Service  should  employ  men  suitably 
trained  and  experienced  in  recreation,  landscape  engineering,  and 
related  subjects. 


38 


Recreation  Uses  on 


Appendix  I 
The  National  Forests 


State  in  which 
located. 

Forest. 

Area. 

State  in  which 
located. 

Forest. 

Area. 

Alaska 

Chugach 

Acres. 

Colorado 

Leadville 

Acres. 

Tongass  
Apache 

I5>45i,7i6 
i,  182,  782 

Montezuma  
Pike 

700,082 
i  080,381 

Coconino  
Coronado  «  

1,601,598 
1,  307,461 

Rio  Grande  
Routt  

1,136,884 
833,459 

Crook  
Dixie  «  

870,  130 
17,680 

San  Isabel  
San  Juan  

598,912 
617,  995 

Kaibab  
Prescott  
Sitgreaves  
Tonto  

1,072,900 
1,433,366 
(>S9,337 
1,994,  239 

Florida 

Sopris  
Uncompahgre  
White  River  
Florida  

596,986 
790,  349 
848,018 
308,  268 

Tusayan 

Idaho 

Boise 

Arkansas         .    ... 

Arkansas  

Cache  o..    . 

492,668 

Ozark 

Caribou  <* 

68  1  ,  540 

California 

Angeles     .... 

820,  980 

Challis 

California  
Cleveland  
Crater  «  
Eldorado  « 

807,444 
547,'  98i 
46,  977 

Clearwater  
Coeur  d'Alene  
Idaho  
Kaniksuo 

785,103 
662,611 

i,  I93>439 

Inyoo  
Klamath  a 

1,269,980 

Lemhi  
Minidoka  a 

1,095,924 

Lassen  
Modoc  

936,  877 
1,182,986 

Nezperce  
Payette  

i,  624,  582 
831,926 

Mono  o  
Monterey  

784,  620 
316,058 

Pend  Oreille  
St.  Joe  

676,014 
493,  925 

Plumas 

Salmon 

Santa  Barbara.  .  .  . 
Sequoia 

1,688,571 
i,  882,  980 

Sawtooth  
Selway 

1,203,387 

Shasta  
Sierra  

803,448 
'i,  489,  934 

Targheeo  
Weiser  

977,847 
562,  609 

Siskiyou  a  

349,  069 

Michigan 

Michigan 

89,  466 

Colorado 

Stanislaus  
Tahoe  a  
Trinity  
Arapaho 

810,399 
542,  226 
1,430,547 
634,  903 

Minnesota  
Montana  

Minnesota  
Superior  
Absaroka  
Beartooth 

190,602 
857,255 
842,467 

Battlement  
Cochetopa  
Colorado 

651,227 
90S,  723 

847,328 

Beaverhead  
Bitterroot  
Black  feet 

1,337,223 
1,047,012 
865,077 

Durango  
Gunnison 

614,  129 

Cabinet  
Custer 

830,  676 

Hayden  a,  
Holy  Crocs 

65,  598 

Deerlodge  
Flathead 

833,178 

I>Salo  

27,444 

Gallatin  

564,855 

Part — Area  of  Forest  in  more  than  one  State. 


the  National  Forests 


39 


The  National  Forests — Continued 


State  in  which 
located. 

Forest. 

Area. 

State  in  which 
located. 

Forest. 

Area. 

Montana 

Helena  

A  ores. 
687,983 

Oregon 

Wenaha  ° 

Acres. 

Jefferson 

Whitman 

884  485 

Kootenai  
Lewis  and  Clark.  . 
Lolo 

1,336,061 
811,  161 

Porto  Rico  
South  Dakota  

Luquillo  
Black  Hills  «  

12,443 
483,403 

Madison 

958,  691 

Sioux  ° 

Nebraska  
Nevada 

Missoula  
Siqux°  
Nebraska  
Dixie0 

1,031,529 
96,  743 
206,  074 

Utah  

Ashley  o  
Cache  a  
Dixie0  
Fillmore 

973,-  871 
264,  194 

432,  784 

Eldorado  °  
Humboldt  

400 
1.301,073 
72,817 

Fishlake  
La  Sal  «  
Manti 

656,  740 
519,  384 

Mono0 

Minidoka  a  

72,  123 

Powell 

689,  927 

New  Mexico  

Tahoe°  
Toiyabe  
Carson  
Coronado  °  
Datil  
Gila 

14,853 
1,907,286 
856,  647 
126,478 

2.  670,  412 

Washington  ...... 

Sevier  
Uinta  
Wasatch  
Chelan  
Columbia  
Colville 

729,061 
988,  602 
604,  594 
677,429 
784,  498 
754,  886 

Lincoln  

I,  155,206 
606    482 

Kaniksu0  
Okauogan 

257,859 
1,486,  325 

Santa  Fe  
Pisgah  b 

i  '354,545 

Olympic  
Rainier 

1,534,689 

Oklahoma  

Wichita  
Cascade 

61,480 

Snoqualmie  
Washington  

698,043 

I,  454,  214 

Crater  o  

793,044 

Wenaha  «  
Wenatchee 

313,434 
665,276 

Fremont  
Klamath  a 

855,342 

Wyoming  

Ashley0  
Bighorn 

5,987 

Malheur  
Minam 

1,057,682 

Black  Hills  «  
Bridger  

I44>  759 
710,  570 

Ochoco  
Oregon  
Santiam  
Siskiyou«  
Siuslaw  
Umatilla  
Umpqua  
Wallowa  

716,  564 
1,031,926 
607,099 
998,044 
544,178 
485,786 
1,011,097 
957»557 

Caribou0  
Hayden.0  
Medicine  Bow  
Shoshone  
Targhee  °  
Teton  
Washakie  
Wyoming  

6,547 
322,175 
469,  786 
i",  5  76,  043 
335,471 
1,922,947 
852,653 
899,980 

°  Part — Area  of  Forest  in  more  than  one  State, 
b  Area  acquired  under  the  Weeks  law. 


40 


Recreation  Uses  on 


Lands  Acquired  Under  the  Weeks  Law 

To  January  1,  1918 


State  in  which 
located. 

Area. 

Areas 
acquired. 

State  in  which 
located. 

Area. 

Areas 
acquired. 

Alabama 

Alabama 

Acres. 
7,661 

Tennessee 

Cherokee 

Acres. 

83,  875 

Georgia  
Maine  

Georgia  
Savannah  (part)  .... 
White  Mountain 
(part) 

58,067 
30,  53° 

Virginia  

Unaka  
White  Top  (part)..  . 
Massanutten  
Natural  Bridge 

11,854 
40,906 
38,  168 
71,  710 

New  Hampshire.  . 

White  Mountain 
(part) 

241,878 

Potomac  (part)  
Shenandoah  (part) 

22,879 
87,  159 

North  Carolina  .  .  . 

Boone  
Mount  Mitchell 

1,181 

West  Virginia 

White  Top  (part)  .  .  . 
Mon  ongahela 

",358 

South  Carolina.  .  . 

Nantahala  
Savannah  (part)  .... 
Savannah  (part)  .... 

4S»3S4 
31,780 
13,921 

Potomac  (part)  
Shenandoah  (part)  .  . 

30,441 
13,319 

the  National  Forests 


41 


Appendix  II 

National  Game  Preserves 

The  following  national  preserves  situated  wholly  or  in  part 
within  National  Forests  have  been  designated  under  special 
acts  of  Congress  for  the  protection  of  game : 


Name. 

National  Forest. 

State. 

Act  approved. 

-  Latest  proc- 
lamation. 

Area. 

Grand  Canyon 

[Tusayan  

I  Arizona 

JJune  29,  1906: 

>  June    3,  1909 

Acres. 

Pisgah 

JKaibab  
Pisgah 

North  Carolina 

1  (834  tat.,  607.)" 
Mar      1,1911 

Oct     17,  1916 

Wichita 

Wichita 

Oklahoma 

(36Stat.,96i.) 

June     2,  1905 

(33Stat.,6i4.) 

42  Recreation  Uses  on 

Appendix  III 
National  Monuments  within  National  Forests 

1.  Bandelier  National  Monument,  in  the  Santa  Fe  Forest,  New 
Mexico;  area,     22,075     acres;  created    to    preserve    prehistoric 
aboriginal  ruins. 

2.  Devil's  Post  Pile,  in  the  Sierra  National  Forest,  California; 
area,  800  acres;  created  to  reserve  lands  of  scientific  interest  due 
to  the  existence  of  lava  field,  etc.,  and  as  an  illustration  of  vol- 
canic activities. 

3.  Gila  Cliff  Indian  Dwellings  in  the  Gila  National  Forest  in 
New  Mexico;  area,  160  acres.     The  Gila  Hot  Springs  Cliff  Houses 
are  the  best  representative  of   cliff   dwellers'  remains   in   that 
region. 

4.  Grand  Canyon  National  Monument,  in  Arizona,  made  from 
Kaibab    and    Tusayan    National    Forests;  area,    806,400    acres. 
This  is  the  greatest  eroded  canyon  in  the  United  States. 

5.  Jewel  Cave,  in  the  Black  Hills  Forest  in  South  Dakota;  area, 
1,280  acres.     Natural  formation  consisting  of  a  cave  of  great 
scientific  and  public  interest. 

6.  Mount    Olympus    National    Monument,    in    the    Olympic 
National  Forest,  Washington;  area,  299,370  acres.     This  reserves 
certain  lands  containing  objects  of  unusual  scientific  interest, 
including  numerous  glaciers;  the  region  has  formed  a  summer 
range  and  breeding  ground  for  the  Olympic  elk,  a  peculiar  species 
rapidly  decreasing  in  numbers. 

7.  Old  Kassaan,  in  the  Tongass,  Alaska;  area,  38  acres;  for  the 
preservation   of  certain   aboriginal   ruins   of  the  former   Haida 
Indian    village,    representing    a    distinctive    type    of   aboriginal 
American  civilization. 

8.  Oregon  Caves,  in  the  Siskiyou  Forest,   Oregon;  area,   480 
acres.     These  are  natural  caves  of  unusual  scientific  interest  and 
importance. 


the  National  Forests  43 

9.  Tonto  National  Monument,  in  the  Tonto  Forest,  Arizona; 
area,  640  acres.     Two  prehistoric  ruins  of  ancient  cliff  dwellings 
of  ethnologic,  scientific,  and  educational  interest. 

10.  Walnut  Canyon,  in  the  Coconino  National  Forest,  Arizona; 
area,   966   acres.     Prehistoric   ruins   of  cliff  dwellings   of   great 
educational  and  scientific  interest. 

11.  Wheeler  National  Monument,  in  the  Rio  Grande  Forest, 
Colorado;    area,    300    acres.     Certain    volcanic    formations    of 
unusual  interest  as  illustrating  erratic  erosion. 


o 


